Disclaimer
This report was compiled by an ADRC visiting researcher (VR) from ADRC
member countries.
The views expressed in the report do not necessarily reflect the views of
the ADRC. The boundaries and names shown and the designations usedon the maps in the report also do not imply official endorsement or
acceptance by the ADRC.

ASIAN DISASTER REDUCTION CENTERPREPARED BY:
Sodnom BAZARRAGCHAAg
NEMA of Mongolia
VISITING RESEARCHER (ADRC)

OF THE VISITING RESEARCHER PROGRAM- YEAR 2011B

Domo
Arigatoggozaimasu!!!

I am very thankful to the government of Japan and all
the staff members of the ADRC, for being such acooperative partner to the government of Mongolia,
chief of NEMA, director of DRI, and for allowing me tohave such a wonderful experiencepduringg my
y stayy inJapan.. For providing me kind cooperation to conduct
Japanthe successful research program in Japan
Japan..

Table of Contents
ABSTRACTINTRODUCTION
CHAPTER 1. OVERVIEW OF DISASTER SITUATION IN THE WORLD, MONGOLIA AND JAPANCHAPTER2. COMMUNITYCOMMUNITY-BASED DISASTER RISK MANAGEMENT: A FRAMEWORK FOR
COMMUNITY PARTICIPATION IN DISASTER RISK REDUCTION
CHAPTER 3
COMMUNITY PARTICIPATION IN DISASTER RISK REDUCTION IN MONGOLIA AND JAPAN3.1
3.1.. Community Participation in Disaster Risk Reduction in Mongolia3.1.1 Recent Activities for Enhancing Community Capacity for Disaster Risk
Reduction in Mongolia3.1.2. Capacity Development and Raising Awareness of Communities
3.2. Community Participation in Disaster Risk Reduction in Japan
3.2.1 Recent Activities for Enhancing Community Capacity for Disaster Risk
Reduction in Japan
3.2.2. Case studies in external on community participation in Japana) Themes
Themes in Iza!
Iza! Kaeru Caravan disaster reduction activities: Non Profit
Organization”
Comparative Analysis of community participation in Japan & Mongolia
CONCLUSION
Lessons learned
Recommendations for community participation on disaster risk reduction in Mongolia
Bibliography
 EndnoteEndnote--Case studies
3

INTRODUCTION¾Generally, the disaster risk management process (cycle) is
composed of the following main elements conflux Knowledge
management (information programs and systems, public awarenesspolicy, education and training, research in disaster reduction)¾Currently is not the survey “Community based disastermanagement”, “Community based disaster risk management” relative
to this title in Mongolia . But ph.D.
ph.D. D.
D.Gombosuren
Gombosuren,, P.Tsedeb thecreature to reflect introduction of incipience development also trend,
updating, trendy of evolutional of disaster protective management
system of Mongolia.
Mongolia.
¾So I would like to propose to study public awareness andcommunity based disaster management, since I have been
conducting the related researches in terms of community role indisaster mitigation. Since the community rescues the people lot more
th rescuers d
thando, it isi essential
ti l tot improveitheth communities
iti DisasterDit
Education and understanding.

Specific Aims
The main objective of this study is to analyze some prevailingbest practices of community participation in disaster risk reduction in
Japan and make recommendations appropriate for Mongolia.
To study practices of community participation in disaster riskgand Japan.
pThis will enable communities to better
reduction in Mongolia
understand their changing risk environment and thus become more
resilient through proactive risk reduction efforts¾Gather knowledge
g and skills from the disaster managementgsystem in Japan especially the participation community on disasterrisk reduction in Japan¾Strengthening of community institutional mechanisms;¾Empowering community at risk particularly;¾ To study the new skill of prevention activity for Mongolian community¾To recommend the appropriate practices of community participation indisaster preparedness planning in Mongolia

Key words
community based disaster management, risk reduction,
mitigation, community participation

Required Data and Information and Research method
methodolog is comparison and analing
Among the research methodology
analyzing.
The main source of secondary data of my research
In Mongolia: published and unpublished data and information available in
the National Emergency Management Agency & Published data fromother ministries ,departments
In Japan: ADRC Reference materials, JICA’s Training materials andpublished data from different agencies have been used for Research
purpose.

1 OVERVIEW OF DISASTER SITUATION
1.
IN THE WORLD, MONGOLIA AND JAPAN

300

16000
14000

250
200

great Pacific Ocean Earthquake

12000
10000

150

8000

100

6000

50

4000

0

2000
0
1990

1993

1996

1999

The mapp is based on data pprovided by:y UN
Cartographic Section, Global Discovery, FAO,
Smithsonian Institute, Pacific Disaster Center,
UNISYS M
UNISYS,
Munichi hR
Reinsurance.
iHazard risk:
Earthquakeq
Flood
TsunamiVolcanic Eruption
Storm Surge

Hazard risk:
Drought
E thEarthquakek
FloodVolcanic Eruption

2002

2005

2008

2011

2 A FRAMEWORK FOR COMMUNITY
2.
PARTICIPATION IN DISASTER RISKREDUCTION

Parallel efforts in various regions worldwide called for a shift inperspective from the prevailing emergency management
framework to disaster risk management to reverse the trend of
exponential increase in disaster occurrence of and loss fromsmall- and medium
small
medium-scale
scale disasters
disasters. These highlighted the needfor proactive disaster management activities and the significant
role of local communities.
The community based approach also corrected the defects ofthe top-down approach in development planning and disastermanagement which failed to address local needs, ignored thepotential of indigenous resources and capacities, and may haveeven increased people’s vulnerabilities.
E
Experiencesiiin ddevelopingl i regionsiandd countries
t i now affirm
ffi ththegains of community based disaster management.

Evolution of the participatory community
paradigm (for capacity building ofy)community)
The approaches developed to be more people
centric, and voluntary disaster response groups

Development of a community approach in planningand decision making,

The approaches developed CBDM, define theoverall project purpose, and the aims of the
project’s
projects communications strategy
Identify communication channels and formulate
communications material, pparticipatory
pre-testing,pypg
implementation, evaluation
Institutionalization of CBDRR into the policy,
planningpg and implementation,p
implementation
pofinnovative programs to explore new dimensions in
CBDRR practices, development of frameworks andtools to support the work of decision-makers andpractitioners, development of new traning
g tools toenhance the capacity of practitioners, continued
support to the regional entities for promoting
CBDRR practices.

Evolution of the Disaster paradigm1
Disasters were treated as one-off events
responded to by governments and relief agencies
Improved preparedness (stockpiling of relief goods,
better relief managementgetc.)) amonggg
governments
and relief agencies to “deliver relief”. This
“contingency planning” approach certainly improved
the efficiency of relief agencies but left a lot to be
desired in terms of appropriatenesspp p
and effectivenessof relief.
A more technocratic paradigm came into existence
which believed that the only way to deal with disasters
was byy ppublic p
policyy applicationppof ggeophysicalp yandengineering knowledge
From the realization that people’s vulnerability is a key
factor determining the impact of disasters on them,“vulnerability”
y emerged
g as the key
y theme and more andmore emphasis was laid on using “vulnerability
analysis” as a tool in disaster management

In recent years, a more comprehensive approach calledrisk management has emerged. This approach has
three distinct but inter-related components: hazard
assessment; vulnerability
y analysis;yand enhancementof management capacity.

[1] Dr. Suvit Yodmani, “Paper Presented at The Asia and Pacific Forum on Poverty Organized by the Asian Development Bank”.

3 1 Community Participation in Disaster
3.1.
Risk Reduction in Mongolia
In the legal environment reflect community
participationi i i iin disasterdirisk
i k reduction:d i
9 Law on Disaster Protection:¾ To regulate matters relating to the principles and full powers of disasterprotection organizations and agencies, their organization and activities, aswell as the rights and duties of the State, local authorities, enterprises, entities
and individuals with relation to disaster protection
protection.
¾ to communicate activities between the State and Local Governments,
enterprises, entities and the state services in the framework of coordinating
prevention rescue
disaster prevention,
rescue, response and recovery
recovery.
9 Environment of NEMA:¾ My country the vision of the NEMA is “To support in providing national safetyththroughh riski k andd vulnerabilitylbilit reduction,d ti
strengtheningt
th i didisastert managementtand implementing intensively disaster protection measures based oncommunity involvement” to underscore essential needs of community
participatory.
participatory81

non-interference
other

2

come down to information

26

life-saving

Do you known to what extent ofdisaster? (Source:Research paper of
DRI, 2011)9protective property

4

contribution, and help

34

mobilization

27

training
little41%0ignorance
10%

good
33%

41

very good
16%

10

20

30

40

50

60

70

80

90

Community participatory form.(Source:Research
paper of DRI, 2011)

3.1.13
1 1 Recent Activities for Enhancing
Community Capacity for Disaster Risk
Reduction in Mongolia

81
81,
secondary schools

61689
61689,
students,
schoolworkers

4105
4105,
teacheers200,
emergencymanagers
and statadisasterinspectorsp

The Capital City Emergency
Management Department incooperation with the Department of
Education conducted “Earthquake
Evacuation Drill” and “FirePrevention Table Top Training”
simultaneously at all.

Disaster protection complex training

Disaster protection command staff training.

.

Disaster protection preparedness inspection

Joint Training and Exercises

3.2.
3
2 Community Participation in
Disaster Risk Reduction in Japan Japan has many experiences about natural disasters mostfrequently in the world
 gained the knowledge and developed the skills of responding
and preparing for disasters through its past experiences
 “Community –based disaster Management” has drawn
people’speoples attention in the field of disaster management
 “preparations” for emergencies that have been made on agbasis will be g
greatlyy valued.
regular Recently developed new term, Gensai “to reduce disasters” hascommonly be used in Japan.
 Community based disaster prevention led by citizens that plays
the central role in reducing disasters

3.2.
Capacity Development and Raising
Awareness of Communities
Involvement of various local groupsDevelopment of Attractive Educational
Tools for Proper Understanding• Wide Variety of Tools by Using Various Medium• Develop Educational Tool of High Quality

Hazard mapping and assessment for effective Community based disaster risk
(Source: www.drh.bosai.go.ji)

Participants are to compete for building up points,
using cards depicting materials needed for eachscene.

Participants are to enjoyably learn about
topics which will be useful in the event of anearthquake.

(Source: ADRC reference material)

Public Awareness for theDisasters in Japan

Role of Education System has been Modified to prepare theCommunity for all kinds of Disasters in Japan.
1 Elementary1.
Elt
Education
Edti
2. High school Education
3. University Education
4 Community Education
4.
5. International Education

School Disaster Prevention Education Programs:gThis pprogramsg
are designedgand utilized mainly by teachers, but most of the program can be conducted incooperation with local communities.

Community’s programs in Japan(Cont.)
Community Emergency Drill Programs: City
government has focused on establishing anddeveloping voluntary organization for disasterprevention in communities

Fire and disaster management agency in Japan(FDMA): Role of the FDMA “Safe and secure regional
development with the cooperation of local residents” and“National response in times of need”

3.2.2.
3
2 2 Case studies in external oncommunity participation in Japan

Iza! Kaeru Caravan
a new kind of disaster reduction training
program learning through fun
th ffollowing
thell i points:
i t
Overcome lack of knowledge of children
Support evacuation of disabled people
Promote a spirit of teamwork
Transferringg not only
y how to implementpthe event, but also background andprocess to create the event.

JAPAN•

Disaster prone. Volcanoes,
earthquake tsunami
earthquake,tsunami, typhoon &floods, landslides•

Strong DM BasicCountermeasure Act (formulated •in 1961) Updated regularlyJapanhighlypg y developed
p countryy •and pioneer in DM & DRR since
1959
Community mobilization and•strong Community to response
against any kind of disaster.
Every citizen knows the conceptof self help, mutual help/ neighborh l andhelp
d community
it h
help
l d
duringidisaster

•
•

•
•

•
•

•

•

MONGOLIA•

Mongolia is prone to a variety of naturalhhazards.
d M
Major
j di
disasterst
are ddrought,
ht
earthquakes, epidemics, famine, floods,
forest fires, wind damage, snow damage(Dzud)DM Countermeasure Act (formulated in2003) Amendment
Mongolia developing country and pioneer
in DM & DRR since 2004
Community mobilization and community
volunteers expanding gradually. Study
starting the concept of self help, mutual
help/ neighbor help and community helpd i diduringdisastertStrong activities voluntary organization for disaster •prevention
Developed Tools for Proper Understanding:•
Educational TV Program (NHK), Wide Variety of
Educational Tools (Disaster-management cardgame)•
Promotion of Contribution to Disaster Reduction
Activities by Corporate Sectors
Inculcating the culture of transferring the lessons•
learnt from a disaster to next generation – Throughtelling story, museums, community drills, learning
centers, video films, etc.
Town Watching (Preparedness)- Disaster
Management Cycle including that of community•
education•C
Commoneducatingdtichildrenhildini basics
b i off disasterditmanagement through participatory exercises like
Kaeru Caravan

Still low activities voluntaryorganization for disasterpreventionpe e toDeveloping tools for proper
understanding
PromotionPti off Contribution
C t ib ti totDisaster Reduction Activities by
Corporate Sectors
Still not yet (museum, video films,
community drills, learning centers
for disaster)

Still not yet
StartingStti frameworkfk ongoingiproject

CONCLUSION¾
CBDRM puts community participation at the heart of process
so that the main stakeholder and most vulnerable to disaster will havegreater roles over the decisions and mitigation activities. As many of
the cases show, it is imperative to promote a culture of participatory
planningpg and implementationpof disaster risk reduction initiatives.
¾
Community process and participation builds confidence, pride
that they are able to make a difference and capabilities to pursue
disaster mitigation and preparedness and bigger development
responsibilities at the local level. This leads to empowerment.
¾
Community involvement in risk assessment and risk reduction
planning leads to ownership,ownership commitment and individual andconcerted actions in disaster mitigation, including resource
mobilization;¾
C
Community
it B
Based
d Di
Disastert Miti
Mitigation
ti isi costt effective,
ff ti
selflfhelp and sustainable even if it is time consuming.

Conclusion cont…
Mongolia:¾
CBDRM is new in terms of “terminology” but in practice, thisapproach has been employed at different levels and in distinctive areasin Mongolia through many generations. The meaning and objectives ofpp
CBDRM are well reflected in p
policies and fundamental principles
ofMongolian Government.
¾
Conspicuously from research awareness and knowledge as mostknowledge understanding/appreciation ofpeople still lack the proper knowledge,
disaster protection, thus, the need for it to be mainstreamed into
national policies and initiatives.
¾
Community awareness to recognize disaster prevention andmitigation by themselves is established.
¾
Also conspicuously from research awareness and knowledge ast themtht continue
ti
th futuref th work.
k
CBDRR tototheresearch¾
In this step for getting more understanding CBDRR, we can get
the outputs to transfer to create some kinds of educational material; forcreate some activities.
¾
Additionally, case studies a wide array of policy areas, highlightgg and local capacitypy buildinggbroader issues of institutional strengthening
on different hazard types and with different stakeholders,Conclusion cont…
Japan has many experiences about natural disasters.
disasters It has gained theknowledge and developed the skills of responding and preparing fordisasters through its past experiences. In Japan, 1995 January 17,
K b city
Kobe
it experiencedid an exceptional,ti
l disaster,dit called
ll d theth GreatGtHanshin –Awaji Earthquake,¾
In the recent years in Japan, “Community based disaster
Management” has drawn people’s attention in the field of disastermanagement. This is an idea that it is important not only to provide
supportpp
for developingp g countries,, but also to providepsupportpp
for theimprovement of the ability of their local communities to prevent
disasters in order to reduce damages, of lives and property.
¾
For effective disaster management, it is important that theCentral Government, Local government, Public corporations andprivate citizens must work out their roles appropriately.
¾
Especially the role of local government and Local community
has been increasing. Such experience and knowledge of disastermitigation action in Japan should be shared with other countries byt ki intoi t considerationidtill conditions
diti
i eachh country.
ttakingoff localinConclusion cont…
¾
Having more parties at stake would lead to active participations
from as many sectors of the community as possible into the project,decreasing/ shrinking the unknown areas, integrating the information
useful and hence sharing the responsibility.
useful,responsibility¾
When the project is failed, parties concerned share theresponsibility, ready to review the preceding programs and theiractions and hence take new measures for recovery / change strategies
actions,
for human security, Educational tools for children.
¾
However Disaster risk reduction paradigm requires a multif
facetedd approachh eitheri h ini preparedness
dor in
i response. Because
B
Active participation, sharing the important information andresponsibility from as many sectors of the community as possible toreduce the disaster risk at all level.

LESSONS LEARNED Community awareness through drills, museums, training
centers, etc¾ A very important learning that community should be at thecentre stage of each activity pertaining to disaster managementcycle¾ I could
ld alsol learnltheth fact
f t thatth t community
it are being
b i
trainedt i d totsave themselves first and then their neighbors until theemergency responders reach the site
¾ It was also surprising to know that community saved more
lives than emergency responders during The Great HanshinAwaji
j earthquakeqLessons learned cont…
 DocumentingDitheh experiencesi
off major
j disasters
dithroughhhphotographs, movies, messages and research• An importantplearning
g in itself when we realize how much it canbe useful to younger generations who have not experienced
major disasters• It could encourage the younger generations to be prepared orface dire consequences• It is also amazing to see old photographs (1891, 1931), black andwhite video movies (amateur) preserved for public education¾ International Trainings- ADRC VR program is a very Good andImportant example to the world

Lessons learned cont…
 “ self-help,
lf h l mutuall help”,
h l ” andd thenh public
bli aid
id ffunction
i neededd d to bbeproperly coordinated to reduce impact of disasters .
 Introduce DM & DR education at schools,, “Disaster Risk Reduction
begins at school”
 Disaster Prevention is the person’s bonds. The motto of every
community is “makemake a town is happy town,
town Happy town against
disaster.” Booklets, Maps, Sign Plates, are valuable means of communication fordisaster mitigation.
 City, Region, Home, Individual role is important for Improvement of thedisaster responsive capability in the Region
Region.
 Kaeru Caravan” is amazing learning tools, to reduce the risk ofdisasters.
 The most powerful tool for disaster management is community
empowerment and community sustainability.

RECOMMENDATIONS FOR COMMUNITYPARTICIPATION ON DISASTER RESKREDUCTION IN MONGOLIA …
For stakeholders:¾
Government of Mongolia has to integrate disaster reduction activities
into normal practice of good governance and into the regular planning andbudgeting process.
¾
Development of participatory land use and development plans thatiincorporatet disasterdit risksi k considerations
id ti¾
Networking among the communities should be further strengthened
to share the experience and knowledge and expertise on disasters.
¾
Awareness creation, sensitization and capacity building of media indisaster risk reduction are necessary for effective use of the reach of media
and civil society.
y¾Strengthening of local governance, including the disaster risk
reduction capacities of local governments¾
Government has to provide financial and technical and morale
support to disaster related training centers, NGOs who would act as change
agents in the community participation process on disaster risk reduction.

recommendation cont…
II. For NEMA:¾
Greater need for formalization of disaster management plans at the communitylevel¾
Comprehensive Action plan should be developed for increasing seismic safety
public facilities, schools, hospitalspand life lines to minimize the future losses of livesof p
and properties that may result from major earthquake.
¾
Development of disaster mitigation tools for communities at risks by involving
schoolteachers and students in the process, in order to assess hazard and risk ofcommunity.
¾
Participatory Learning Action (PLA) introduced by community based disastermanagement should be strengthen so that community’s capacity for managing disaster
related project will increase.
¾
Strengthen the Community member’s capacity building processes that promote
self help, unity within the framework of local disaster reduction.
¾
A mechanism
h iffor continuous
ti
training
t i i should
h ld bbe putt iin placel
tto iimprove th
thecapacity and skills of all those who are involved in disaster management. Arrangements
for the necessary training of relevant staff should also be made to build up capacity formaking assessments after any natural disaster.
disaster The Disaster Management Department
may be strengthened in terms of human resources and logistics to undertake theresponsibility.

recommendation cont…
III. For Disaster Research Institute:¾
Continue research and analyze CBDM,
CBDRM, CBDRMit, the additional element in disastermanagement necessary to reverse the worldwide
trend¾
Research and analyze local perceptions andadaptations to disaster risks as a basis for a disaster
reduction strategy in Mongolia.
¾
Research and analyze Methodology toenhance communities’ awareness of disaster risk andto develop their ability to cope with and to responddisasters correctly.

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2. Reference material, ADRC, 2012
3 Implementing the Hyogo Framework for Action through Gendered
3.
CBDM, Disaster Management in Hyogo Prefecture , 2005-2015
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Management 2006
Management,
5. Risk and poverty in a changing climate, 2009
6. Annual Disaster Statistical Review 2010 – The numbers and trends
7 Police
P li At 21 A
7.
Agency off JJapan, ddate:
Aprilil 2011
8. Global Assessment Report on Disaster Risk Reduction, 2011
9. Lorna P. Victoria, Director, Center for Disaster Preparedness
10. ADPC-CBDRM-11, 2003
11. UNISDR, Risk and poverty in a changing climate,2009
12. “Disaster management”
of JICA trainingg
g material,2012

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15. Disaster Management in Japan (Cabinet office, Government of Japan)
16. JICA, Hyogo “Bokomi” Guidebook Kobe City Fire Bureau (KCFB)
17. Location of the sea of Japan (LME) book Terazaki, 1999
18 Handbook
18.
H db k ffor th
the utilizationtili ti off DMAM forf community
it b
based
d di
disastertmanagement
19. Disaster Prevention and People: Working Towards the creation of a strong
society
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Learned, 2010
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24 www.adrc.asia
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www adrc asia